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($$   1  GGGG)!dxdx 8 _"   _fXlXXXfG\XfXl   Ad FILEDf_fG\  December14,1999Cecil_Crowson_,Jr.AppellateCourtClerkdA ,cAZ"Arial Regular FT!   _QXzXXXSXzXXQXz`   89XXdd8TR[A'Legal3'A' Legal3'T  XT†]†_@LLINTHECOURTOFAPPEALS `    ATKNOXVILLExWebB2.jz! `@E- ttR wx   `     h      p        `     h      p     @*@@*)0  LOUDONCOUNTY (#(# MARKMATLOCKd/b/aMSM,@*)  03A019904CV00132 \  ЀDEVELOPMENT,INC.,0 h 0h(#h(#)2 (#(# @*)   h    Plaintiff/Appellant,  )   p  >  @*)       v.@*)  @*   @*)  HON.RUSSELLE.SIMMONS,JR. `  LENOIRCITYBOARDOF0  )0(#(##QXzXXSXzV#SXzXXQXzJUDGE6(#(# ЀZONINGAPPEALS,0  0h(#(#0h(#h(#)l (#(# Ѐ@*)   B Ѐ#QXzXXSXz3#Defendant/Appellee.SXzXXQXzԀ) x   Ѐ@*)   p   @*)  REVERSEDANDREMANDED d @*)@*  ARTHURG.SEYMOUR,JR.andMARYELIZABETHMADDOX,Frantz,McConnell&Seymour,LLP,Knoxville,forAppellant   `     h      p     ROBERTG.HINTONandMELODYDANIELMUSICK,Sproul&Hinton,LenoirCity,forAppellee@$OPINION *p!(    @  @`  @  @  R-#+ Goddard,P.J.     `    ` Thisappeal#QXzXXSXzZ#involvesazoningdisputebetweenMark 28)1 Matlock,doingbusinessasMSMDevelopment,Inc.,thePlaintiff/Appellant,andtheLenoirCityBoardofZoningAppeals,theDefendant/Appellee.TheLoudonCountyCircuitCourtaffirmedthedecisionbytheBoard,andMr.Matlocknowappeals.   `     h      ;2; T† TTR[A' Legal[A'LegalA' LegalA' LegalT T     ` Mr._Matlock_Ԁpresentsthreeissuesforour   consideration:   `  1.WhethertheBoardexceededitsjurisdiction  U0 ` 0 ` ` andabuseditsdiscretionindenyingapermit p  totheplaintifffortheuseofbelowground `  storagetanksforpropanegasdistributionin P  aC3zonewherethelanguageofthezoning@    `  ordinanceclearlyallowssuchause. 0   `  2.WhethertheBoardactedillegally, p  `  arbitrarily,andcapriciouslyindenyinga `  `  permittotheplaintifffortheuseof P  `  belowgroundstoragetanksforpropanegas @  `  distributioninaC3zonewherethelanguage 0  `  ofthezoningordinanceclearlyallowssuch    `  ause.  0 ` 0 ` ` 3.WhethertheBoardactedillegally,  arbitrarily,andcapriciouslyindenyinga   `  permittotheplaintifffortheuseofabove  p 0 ` 0 ` ` groundstoragetanksforpropanegas !` distributioninaC3zonewherethe "P ordinanceisnotbeingactivelyenforcedas#@   `  againstotherpropertyownersinthatzone. $0 c `     h      p      %     ` Mr._Matlock_ԀownsfouracresoflandonSimpsonRoadin @)" _Lenoir_ԀCityhavingpurchasedthepropertyonApril20,1998.He  +!$ wouldliketobuildapropanegasdistributioncenteronthe -#& property,whichiszonedC3 HighwayCommercialDistrict .%( pursuanttothe_Lenoir_ԀCityZoningOrdinance. 0`'*    `     ` OnMay4,1998,Mr._Matlock_Ԁsubmittedtothe_Loudon_ `6-0 CountyOfficeofPlanningasiteplan,whichdidnotindicate @8.2 locationsforthepropanegastanks.PatPhillipswiththe  :04 _Loudon_ԀCountyOfficeofPlanningrequestedchangestothesite `  plantoindicatetanklocations.Mr._Matlock_Ԁmadetherequested @  changesandresubmittedtheplan.      `     h      ` AtitsJune2,1998meeting,theBoarddecidedthat `  abovegroundtankswerenotpermittedinaC3zoneanddenied @  Mr._Matlock_srequestforthemonhisproperty.      `     h      p      ` AtitsJuly7,1998,theBoardconsideredMr._Matlock_s   proposalforbelowgroundtanks,butdecidedthatabulk  distributioncenterforpropanegasisnotpermittedinaC3  zone.OnAugust18,1998,Mr._Matlock_ԀfiledaPetitionfora !` WritofCertiorariinthe_Loudon_ԀCountyCircuitCourt. #@    `    ` OnMarch22,1999,the_Loudon_ԀCountyCircuitCourt @)" dismissedMr._Matlock_sPetitionforWritofCertiorari,andMr.  +!$ _Matlock_Ԁfiledthisappeal. -#&    `     h      ` Mr._Matlock_ԀarguesthattheBoardactedillegally, 2@), arbitrarily,andcapriciouslyindenyinghispermitfortheuse 4 +. ofbelowgroundstoragetanks.The_Lenoir_ԀCityZoningOrdinance `6-0 providesforthefollowingpermittedusesandstructuresinaC3 @8.2 zone:  :04 ]† ]TR[A' Legal[A' Legal A' Legal A' LegalT ]   V(5h83Y"\3"   `  \3'25h  a  .3  0    AnyusepermittedintheC2,Central `  BusinessDistrict.\3''݌P    Ќ  "\3"   `  \3(25h  b  .3  0    Motelsandtouristcourts.\3()݌@    Ќ  "\3"   `  \3)25h  c  .3  0    Servicerepairestablishments,including 0  servicestations,automobilesales,and   repairgarages.\3) *݌   Ќ  "\3"   `  \3-+25h  d  .3  0    Tirerecappingorretreading.\3-+r+݌   Ќ  "\3"   `  \3+,25h  e  .3  0    Veterinaryestablishmentsprovidedthat  allanimalsshallbekeptinside  soundproof,airconditionedbuildings.\3+,p,݌p    Ќ  "\3"   `  \3-25h  f  .3  0    Wholesaleanddistributingcenternot `  involvingoverfivethousand(5,000) P  squarefeetforstorageofwares.\3--݌@    Ќ  "\3"   `  \3/25h  g  .3  0    Shoppingcenters,includingthelocation 0  ofmorethanonebuildingonalot   providedsuchbuildingsshareacommon p fireresistantwall.\3/]/݌`   Ќ  ' `     h      `    ` Mr.Matlockinsiststhathisproposeduseforthe  SimpsonRoadsiteispermittedundersection fabove.He  arguesthathispropanegasbusinesswouldconsistofawholesale  p anddistributioncenterlessthan5,000squarefeetforpropane "P gas,whichisa ware. $0    `     h      p    ` TheBoard,however,arguesthatapropanegas 0* # distributioncenterisnotapermitteduseinaC3zone. ,"% Becausetherewasnodefinitionof waresintheordinance,the -$' Boardhadtointerpretthedefinitiontodeterminewhetherthe /p&) proposedusewaspermissibleinaC3zone,anditconcludedthat 1P(+ apropanegasdistributioncenterwaspermissibleinan 30*- industrialzone,notaC3zone.Mr.Phillipsalsonotedthat p5,/ tanksareusuallymeasuredinvolume,notsquarefootage.(#(#K(# P7-1    `     h  09/3 Ї   ` TennesseeCodeAnnotated278101providesforawrit `  ofcertiorari: @     `  Thewritofcertiorarimaybegrantedwhenever      ` authorizedbylaw,andalsoinallcaseswherean     ` inferiortribunal,board,orofficerexercising     ` judicialfunctionshasexceededthejurisdiction     ` conferred,orisactingillegally,when,inthe     ` judgmentofthecourt,thereisnootherplain, p     ` speedy,oradequateremedy. p   6 `     `    ` Reviewofawritofcertiorariislimitedtowhether    theinferiorboardortribunal(1)hasexceededits ` jurisdiction,or(2)hasactedillegally,arbitrarily,or @ fraudulently._McCallen_Ԁv.CityofMemphis,786S.W.2d633,638   (Tenn.1990)(citationsomitted).     `     h        ` Rulesapplicabletotheconstructionofstatutesand #@ otherordinancesalsoapplytozoningordinances.Cityof %  Knoxvillev.Brown,195Tenn.501,507,260S.W.2d264,267 `'  (1953).Zoningordinancesshouldbestrictlyconstrued.Cityof @)" Knoxville,195Tenn.at507,260S.W.2dat267.Therefore,a  +!$ zoningordinanceisconstruedasawhole,withwordsgiventheir -#& naturalandordinarymeaning.TennesseeManufacturedHousing .%( Associationv.MetropolitanGovernmentofNashville,798S.W.2d 0`'* 254,257(Tenn.Ct.App.1990). 2@),    `     h      p    ` Courts mustalsoconstruezoningordinances x withsome @8.2 deferencetowardapropertyownersrighttothefreeuseofhis  :04 orherproperty.LionsHeadHomeownersAssociationv. `  MetropolitanBoardofZoningAppeals,968S.W.2d296,301(Tenn. @  Ct.App.1997)(citationsomitted).Courtsshouldresolve   ambiguitiesinazoningordinanceinfavorofapropertyowners  unrestricteduseoftheproperty.LionsHeadHomeowners  Association,968S.W.2dat301.   p  `     ` WebstersThirdNewInternationalDictionarydefines `  wareas goods,commodities,manufactures,orproduceofa @ specificclassorkind...anintangibleitem(asaserviceor   aliteraryproduct)thatisamarketablecommodity.  @*   ` Ifwestrictlyconstruethepertinentzoningordinance, #@ Mr._Matlock_sproposeduseforthesitewouldconsistofa %  distributioncenterlessthan5,000squarefeetforstorageof `'  thepropanegas,whichisacommodity.Consequently,we @)" concludethatMr._Matlock_sproposedusefortheSimpsonRoad  +!$ siteispermittedundertheC3zoningordinance. -#& @*   ` Basedontheforegoing,weconcludethattheBoard 2@), actedarbitrarilyandcapriciouslyindenyingapermittoMr. 4 +. _Matlock_Ԁfortheuseofbelowgroundstoragetanksforhispropane `6-0 gasdistributioncenter.     p      x   @8.2   :04 Ї   ` HavingfoundthattheBoardactedarbitrarilyand `  capriciously,weneednotaddresstheremainingissuesonappeal. @  ThiscaseisremandedtotheTrialCourtforfurtherproceedings   consistentwiththisopinionandcollectionofcostsbelow.  CostsofappealareadjudgedagainsttheBoard.  (#(#K(#SX|tXXQX|tԈ   `    @*  _________________________      `     h     HoustonM.Goddard,P.J. p CONCUR: P ______________________  HerschelP.Franks,J.  ______________________ !` D.MichaelSwiney,J. h      "P #QX|tXXSX|tH#